Political and Managerial Problems in Making Public Governance Changes the Driver for Re-Constituting Leadership
E-Book, Englisch, 589 Seiten, eBook
ISBN: 978-3-8350-9100-9
Verlag: Deutscher Universitätsverlag
Format: PDF
Kopierschutz: 1 - PDF Watermark
Rainer Koch is Professor of Public Management at the Faculty of Economics and Social Sciences of the Helmut-Schmidt-University, University of the Federal Armed Forces Hamburg, Germany.
John Dixon is Professor of Public Policy and Management at the Faculty of Social Science and Business of the University of Plymouth, United Kingdom.
Zielgruppe
Research
Autoren/Hrsg.
Weitere Infos & Material
1;Contents;8
2;Contributors;12
3;1 Introduction;21
3.1;Introduction: Problems and Questions;22
4;2 Conceptual Background;28
4.1;Public Governance and Leadership: Outline of the Subject;29
4.1.1;1 Introduction;31
4.1.2;2 Problems and Questions;32
4.1.3;3 Theoretical Concepts;37
4.1.4;4 Subjects of enquiry/ Topics of discussion;41
4.1.4.1;4.1 Subjects at the Societal level;41
4.1.4.2;4.2 Subjects at the whole of Government Level;44
4.1.4.3;4.3 Subjects at the Organisational and Individual level;47
4.1.5;5 Objectives/ Results;49
4.1.6;References;52
5;3 Changes in Public Governance;61
5.1;Governance and the Public Interest: The Challenges for Public Sector Leaders;62
5.1.1;1 Introduction;63
5.1.2;2 The Concept and Modes of Governance;63
5.1.3;3 Governance and the Public Interest;65
5.1.3.1;3.1 Trust and the Public Interest;66
5.1.3.2;3.2 Ethics and the Public Interest;68
5.1.3.3;3.3 Government as the Trustee of the Public Interest;69
5.1.4;4 Public Sector Reform, Ethical Antagonism and Distrust;71
5.1.4.1;4.1 Commercialised Provision of Public Policy Outcomes;71
5.1.4.2;4.2 Privatised Provision of Public Policy Outcomes;73
5.1.4.3;4.3 Stakeholder-led Provision of Public Policy Outcomes;75
5.1.5;5 Implications for Public Sector Leadership;76
5.1.6;6 Conclusion;79
5.1.7;Endnotes;79
5.1.8;References;80
5.2;Modernes Regieren und Public Leadership;86
5.2.1;1 Einleitung;87
5.2.2;2 Public Governance und Neue Staatlichkeit;89
5.2.3;3 Politikmanagement und Public Leadership;93
5.2.3.1;3.1 Modernes Regieren als Interdependenzmanagement;93
5.2.3.2;3.2 Politisch-administrative Führungskonzepte und -stile;96
5.2.3.3;3.3 Public Leadership und nachhaltige Verwaltungsreform;100
5.2.4;4 Leadership – ein Aspekt innovativer Verwaltungspolitik;102
5.2.5;5 Fazit;105
5.2.6;Abbildungsverzeichnis;107
5.2.7;Anmerkungen;107
5.2.8;Literaturverzeichnis;107
5.3;Blair and Governance;114
5.3.1;1 Introduction;115
5.3.2;2 The Story About the Blair Presidency;115
5.3.3;3 The Second Story - Governance;117
5.3.3.1;3.1 Policy Networks;118
5.3.3.2;3.2 Governance With and Through Networks;119
5.3.3.3;3.3 From Prime Ministerial Power to Core Executive;120
5.3.3.4;3.4 The Hollowing Out of the State;121
5.3.4;4 The Networks Beyond Westminster and Whitehall;122
5.3.4.1;4.1 The Blair Government – A Brief Policy Audit;123
5.3.4.2;4.2 From Policy Audit to Policy Critique;125
5.3.5;5 Conclusions;128
5.3.6;Endnotes;130
5.3.7;References;131
5.4;Navigating the Fragments: Political Dimensions of Managing Networked Public Service Delivery;136
5.4.1;1 Introduction;137
5.4.2;2 Shifts towards Networks;137
5.4.3;3 Quest for Legitimacy;139
5.4.4;4 Diversified Forms of Legitimacy;140
5.4.5;5 New Forms of Designing Leadership;141
5.4.6;6 Consequences;144
5.4.7;List of Tables;146
5.4.8;References;147
5.5;The Problem of Politics: Public Governance and Leadership;150
5.5.1;1 Introduction;151
5.5.2;2 Destroying the Leadership of the Mandarins;153
5.5.3;3 The Hidden Problem of Politics;157
5.5.4;4 Leadership and Public Governance;160
5.5.5;5 Conclusion;164
5.5.6;References;165
5.6;Governance - Wandel als Lernprozess;170
5.6.1;1 Zusammenfassung und Überblick;171
5.6.2;2 Management im Governance-Kontext;171
5.6.3;3 Governance-Wandel als Lernimpuls;174
5.6.4;4 Public Governance als Lernmodell;180
5.6.5;5 Verwaltungsreformen als Lernerfahrung;183
5.6.6;Abbildungsverzeichnis;186
5.6.7;Anmerkungen;186
5.6.8;Literaturverzeichnis;187
6;4 Changes in Politico-administrative Leadership;192
6.1;Rebuilding Strategic Capacity? Multi-Level Governance, Leadership and Public Service Agreements in Britain;193
6.1.1;1 Introduction;195
6.1.2;2 Governance and Leadership in Theory;197
6.1.3;3 Governance and Leadership in Practice;203
6.1.4;4 Governance, Leadership and Strategic Capacity;215
6.1.5;Endnotes;217
6.1.6;References;217
6.2;Coordination and Leadership at the Centre of the Australian Public Service;226
6.2.1;1 Introduction;227
6.2.2;2 The Development of a New Australian System;227
6.2.2.1;2.1 Control and Coordination;227
6.2.2.2;2.2 Social and Technological Underpinnings;229
6.2.3;3 Political Control and the Shift to Coordination;232
6.2.3.1;3.1 Cabinet Processes and Central Agencies;232
6.2.3.2;3.2 Structures for Collective Ministerial Control;237
6.2.3.3;3.3 Structures under the Control of Individual Ministers;239
6.2.3.4;3.4 Leadership and the Cultural Dimension;242
6.2.4;4 Reform without Doctrine?;244
6.2.5;Endnotes;247
6.2.6;References;247
6.3;Das Konzept des aktivierenden Staates als deutsches Muster von Governance? - Zur Stabilität und zum Wandel von öffentlichen Institutionen;252
6.3.1;1 Politische Phasen in der Entwicklung der Bundesrepublik Deutschland;253
6.3.2;2 Grundmuster des politisch-administrativen Systems: zwischen Stabilität und Anpassung;255
6.3.3;3 Parteien als Entscheidungsträger in dem institutionellen Gefüge der Verfassung;258
6.3.4;4 Organisierte Interessen als relevante Spieler im Entscheidungssystem;259
6.3.5;5 Das empirische Phänomen: Der Umbau des Staates bzw. das Verschwinden von 1 Millionen Beamten;260
6.3.6;6 Neue Handlungsansätze und -instrumente;262
6.3.7;7 Zur Ausgangsfrage nach dem aktivierenden Staat und Governance;264
6.3.8;Anmerkungen;265
6.3.9;Tabellenverzeichnis;265
6.3.10;Literatur;266
6.4;Reforming the Machinery of Government: The Case of the German Federal Bureaucracy;270
6.4.1;1 The German Federal Government: A Leader or Laggard in Public Sector Reform?;271
6.4.2;2 Selling the “Family Silver”? Privatization of Federal Assets;272
6.4.2.1;2.1 Transportation Sector;273
6.4.2.2;2.2 Telecommunication and Postal Services;275
6.4.3;3 Streamlining the Federal Bureaucracy and Cutting Back its Workforce;277
6.4.3.1;3.1 Cutbacks in the Federal Workforce;279
6.4.3.2;3.2 Introducing New Steering Models in the Federal Bureaucracy;280
6.4.4;4 Adjusting the Regulatory Framework for Public Sector Employment;283
6.4.5;5 Concluding Thoughts;286
6.4.6;References;286
6.5;Leadership in Regional Cooperation;292
6.5.1;1 Introduction;293
6.5.2;2 The Venue for Leadership: Regional Cooperation and Regional Governance;293
6.5.2.1;2.1 “Classical” Regional Cooperation;293
6.5.2.2;2.2 New Types of Cooperation;294
6.5.2.3;2.3 Varying Governance Requirements;296
6.5.3;3 Leadership or Leaderships?;300
6.5.3.1;3.1 Joint Action: Communication – Relation to Power;300
6.5.3.2;3.2 Leaders’ Diverse Habitats;301
6.5.3.3;3.3 Transformational and Transactional Leadership – Heroic Leaders or Leaders as Servants and Partners?;302
6.5.3.4;3.4 More Female Leaders?;303
6.5.3.5;3.5 Location of Leaders in the Hierarchy;304
6.5.3.6;3.6 New Challenges and Pervasive Leadership Deficits;304
6.5.3.7;3.7 “Loosely Coupled Systems” and Leadership;305
6.5.3.8;3.8 Stability of Regional Cooperation: The Exit Option and Leadership;306
6.5.3.9;3.9 Pervasive Requisite for any Leadership: Trust;306
6.5.4;4 Conclusion;307
6.5.5;Endnotes;308
6.5.6;List of Tables;309
6.5.7;References;310
6.6;Finding a Focus for Local Political Leadership: Performance, Party, Public or Partners?;314
6.6.1;1 Introduction;315
6.6.2;2 Comparative Local Political Management Reform;315
6.6.3;3 Understanding the Exercise of Local Political Leadership;317
6.6.4;4 The Local Government Modernisation Agenda in the UK;319
6.6.5;5 Political Management Reform in England;321
6.6.5.1;5.1 Changing Institutional Frameworks for Leadership;323
6.6.5.2;5.2 Changing Leadership Roles;326
6.6.5.3;5.3 The Focus of the New Executive Leadership;328
6.6.6;6 Conclusion;332
6.6.7;List of Tables;333
6.6.8;Endnotes;333
6.6.9;References;333
7;5 Changes in Organisational Leadership;337
7.1;Leadership in a Managerial Context;338
7.1.1;1 Introduction;339
7.1.2;2 What is Leadership?;341
7.1.2.1;2.1 Leadership as a Personal Attribute;341
7.1.2.2;2.2 Leadership as Position;344
7.1.3;3 Leadership in the Strictly Administrative System;346
7.1.3.1;3.1 The Importance of Impersonality;349
7.1.4;4 Leadership in the Managerial Model;351
7.1.4.1;4.1 Personal or Positional Leadership?;353
7.1.5;5 Is Leadership Separable from Management?;355
7.1.6;6 Conclusion;358
7.1.7;References;359
7.2;Politics-Management Relations in an Agency Context: The Case of Centrelink;362
7.2.1;1 Introduction;363
7.2.2;2 Political and Management Models;364
7.2.3;3 Reform Environment;366
7.2.4;4 Centrelink’s Origins;368
7.2.4.1;4.1 Problems and Policy Options in the New Reform Environment;368
7.2.4.2;4.2 Choices of Agency Form and Underlying Models;370
7.2.5;5 Political Relationships;371
7.2.6;6 Managerial Relationship;373
7.2.7;7 Explanations;375
7.2.7.1;7.1 Models in Contention;376
7.2.7.2;7.2 Rise of Integrated Governance and Agency Flexibility;376
7.2.8;8 Conclusion;379
7.2.9;Endnotes;380
7.2.10;References;381
7.3;Management Changes and Adapting Leadership Practices: The Case of the Shared Services Initiative of the Queensland State Government;384
7.3.1;1 Introduction: Problems and Questions;385
7.3.2;2 The Methodological Concept of Benchmarking for Identifying Best Practices;387
7.3.3;3 Complementing Management Change with Leadership Concepts;389
7.3.3.1;3.1 Normative Criteria from the Shared Services Initiative Model of Management Change;389
7.3.3.2;3.2 Practices for Setting up an Overall Management Structure for Shared Services Providers;392
7.3.3.3;3.3 Practices to Adjust the Internal Management Structure;398
7.3.4;4 Provisional Assessment;406
7.3.5;Endnotes;410
7.3.6;List of Tables;410
7.4;Ansätze einer geänderten Verwaltungssteuerung in der Praxis;414
7.4.1;1 Vorbemerkung;415
7.4.2;2 Verwaltungssteuerung in der Senatsverwaltung für Inneres Berlin;416
7.4.2.1;2.1 Struktur;416
7.4.2.2;2.2 Grundzüge der Steuerung;417
7.4.2.3;2.3 Bisherige Zielerreichung;418
7.4.2.4;2.4 Erfolgreiche Entwicklung der Berliner Bürgerämter durch ganzheitliche Steuerung;419
7.4.2.5;2.5 Steuerung interner Serviceleistungen;423
7.4.2.6;2.6 Zwischenfazit;424
7.4.3;3 Auf die Kultur kommt es an;425
7.4.4;4 Forderungen an die Zukunft;428
7.4.5;Anmerkungen;429
7.4.6;Literatur;431
7.5;Wirkungsorientiertes Management in öffentlichen Dienstleistungseinheiten – Neue Anforderungen an die Führung;434
7.5.1;1 Einleitung;435
7.5.2;2 Die Flexibilisierungsklausel;436
7.5.3;3 Die geplante Haushaltsrechtsreform des Bundes;437
7.5.4;4 Das neue Führungsmodell im Bundeskanzleramt;438
7.5.5;5 Selbstevaluation mit dem Common Assessment Framework - CAF in einer Sektion des Bundeskanzleramtes (BKA);439
7.5.6;6 Drei Bezirkshauptmannschaften lernen voneinander;439
7.5.7;7 Kontraktmanagement in der Stadtverwaltung Wien;440
7.5.8;8 Neue Anforderungen an die Führungskräfte;441
7.5.8.1;8.1 Visionäres Denken zulassen und Missionen klären;441
7.5.8.2;8.2 Zielfindungsprozesse sind anspruchsvoll;442
7.5.8.3;8.3 Richtiges und gutes Delegieren will gelernt sein;442
7.5.8.4;8.4 Offenheit für Neues, für Anderes und Interesse an einer kontinuierlichen Ergebnisverbesserung;442
7.5.8.5;8.5 Ganzheitliches Führungsverständnis ist gefragt;443
7.5.8.6;8.6 Regelmäßige Selbstevaluation ist schwer aber notwendig;443
7.5.9;9 Schlussbemerkungen;444
7.5.10;Anmerkungen;444
7.5.11;Literatur;445
8;6 Changes in Individual Leadership;447
8.1;Turning Leadership into Performance Management;448
8.1.1;1 Introduction;449
8.1.2;2 Governance and Current Concepts of Leadership;450
8.1.3;3 Discussing Leadership Approaches;452
8.1.3.1;3.1 The Trait Approach;452
8.1.3.2;3.2 The Functional Approach;453
8.1.3.3;3.3 Behavioural Approaches;453
8.1.3.4;3.4 Power-influence Approach;454
8.1.3.5;3.5 Situational and Contingency Theories;454
8.1.3.6;3.6 Transformational and Charismatic Leadership;455
8.1.3.7;3.7 Servant and Distributional Leadership;456
8.1.4;4 Managing and Improving Performance;456
8.1.4.1;4.1 Performance Management;458
8.1.4.2;4.2 Some Benefits and Critiques of Performance Management;460
8.1.5;5 Case Study: Leadership and Performance Management in the British Senior Civil Service;462
8.1.5.1;5.1 The Performance Management System;462
8.1.5.2;5.2 Leadership in the Senior Civil Service;464
8.2;Personenbezogene Führung als Context Setting - Knee Deep in the Big Muddy?;476
8.2.1;1 Problemhintergrund;477
8.2.1.1;1.1 Asymmetrien;479
8.2.1.2;1.2 Hollowing Out ?;482
8.2.2;2 Personenbezogene Führung;486
8.2.2.1;2.1 Personenbezogene Führung als Untersuchungsobjekt;486
8.2.2.2;2.2 Personenbezogene Führung als Tool;489
8.2.2.3;2.3 Personenbezogene Führung als Strukturelement;490
8.2.3;3 Context Setting;492
8.2.3.1;3.1 Management des Führungskontextes;493
8.2.3.2;3.2 Personenbezogene Führung als Context Setting;494
8.2.4;4 Resume;495
8.2.5;Anmerkungen;497
8.2.6;Literaturverzeichnis;499
8.3;Managing Motivation: Verhaltensannahmen und Personalsteuerung im New Public Management;504
8.3.1;1 Die Ökonomisierung der öffentlichen Verwaltung;505
8.3.2;2 New Public Management – Facetten eines ökonomisierten Steuerungsverständnisses;506
8.3.3;3 ‚Avoiding the negative’ – zum motivationalen Verständnis des New Public Managements;508
8.3.4;4 Seelenmassage oder Sanktionen – Motivationale Grundlagen des Verwaltungsmanagements;510
8.3.4.1;4.1 Intrinsische Motivation: Definition und Relevanz;510
8.3.4.2;4.2 Extrinsische Motivation: Definition und Relevanz;512
8.3.4.3;4.3 Intrinsische und extrinsische Motivation im dynamischen Wechselspiel;514
8.3.5;5 Die Endogenisierung von Motivationen als Gestaltungs-a priori eines New Public Managements;519
8.3.6;6 Die Dynamik von Motivationen und die Steuerung von Verwaltungsorganisationen – konzeptionelle Überlegungen für ein motivationsbasiertes Verwaltungsmanagement;521
8.3.7;Abbildungsverzeichnis;525
8.3.8;Anmerkungen;525
8.3.9;Literaturverzeichnis;526
8.4;Do Extrinsic Rewards Enhance Organizational Citizenship Behavior? A Study of Public Sector Organizations;532
8.4.1;1 Introduction;533
8.4.2;2 (Social) Exchange, Extrinsic Rewards and OCB;534
8.4.3;3 Pay for Performance and OCB in German Public Sector Organizations Empirical Setting, Measures and Data;536
8.4.4;4 Results of Regression Analysis and Discussion;542
8.4.5;5 Managerial and Research Implications;546
8.4.6;List of Tables;547
8.4.7;References;548
8.5;Leadership and Ethics in a Managerialist Context;554
8.5.1;1 Introduction: Searching for Leaders in the Managerial Quagmire;555
8.5.2;2 The Challenge: Economic Rationalism and Changing Ethics;558
8.5.3;3 Governments' Responses to Declining Ethics;561
8.5.3.1;3.1 Leading Ethically in Government;563
8.5.3.2;3.2 Discussion: Ethics, Leadership and Limitations;570
8.5.4;4 Conclusion;573
8.5.5;List of Tables;574
8.5.6;References;574
9;7 Implementation;583
9.1;Success Factors in Implementing Contested Organisational Change – Learning from Private Sector Change Politics;584
9.1.1;1 Introduction;585
9.1.2;2 Theory;587
9.1.2.1;2.1 The Concepts of Political Arena and Change Coalition;587
9.1.2.2;2.2 Influencing Factors of Change Coalition Formation: Related Fields of Managerial Action;588
9.1.3;3 Exploring the Micro-politics of Change Coalition Formation – Results from Case Study Research;591
9.1.3.1;3.1 Research Method, Case Selection and Research Context;591
9.1.3.2;3.2 Research Results: Managerial Activities Contributing to Change Coalition Formation;593
9.1.4;4 Discussion and Conclusion;598
9.1.5;Endnotes;603
9.1.6;References;603
Introduction: Problems and Questions.- Conceptual Background.- Public Governance and Leadership: Outline of the Subject.- Changes in Public Governance.- Governance and the Public Interest: The Challenges for Public Sector Leaders.- Modernes Regieren und Public Leadership.- Blair and Governance.- Navigating the Fragments: Political Dimensions of Managing Networked Public Service Delivery.- The Problem of Politics: Public Governance and Leadership.- Governance - Wandel als Lernprozess.- Changes in Politico-administrative Leadership.- Rebuilding Strategic Capacity? Multi-Level Governance, Leadership and Public Service Agreements in Britain.- Coordination and Leadership at the Centre of the Australian Public Service.- Das Konzept des aktivierenden Staates als deutsches Muster von Governance? - Zur Stabilität und zum Wandel von öffentlichen Institutionen.- Reforming the Machinery of Government: The Case of the German Federal Bureaucracy.- Leadership in Regional Cooperation.- Finding a Focus for Local Political Leadership: Performance, Party, Public or Partners?.- Changes in Organisational Leadership.- Leadership in a Managerial Context1.- Politics-Management Relations in an Agency Context: The Case of Centrelink.- Management Changes and Adapting Leadership Practices: The Case of the Shared Services Initiative of the Queensland State Government.- Ansätze einer geänderten Verwaltungssteuerung in der Praxis.- Wirkungsorientiertes Management in öffentlichen Dienstleistungseinheiten - Neue Anforderungen an die Führung.- Changes in Individual Leadership.- Turning Leadership into Performance Management.- Personenbezogene Führung als Context Setting - Knee Deep in the Big Muddy?.- Managing Motivation: Verhaltensannahmen und Personalsteuerung im New Public Management.- DoExtrinsic Rewards Enhance Organizational Citizenship Behavior? A Study of Public Sector Organizations.- Leadership and Ethics in a Managerialist Context.- Implementation.- Success Factors in Implementing Contested Organisational Change - Learning from Private Sector Change Politics.
Public Governance and Leadership: Outline of the Subject (p. 11)
Rainer Koch
1 Introduction
The following collection of contributions deals with strategic aspects of both design and implementation of large scale modernisations of the management of state and administration. To set the stage for all the further discussions, this introduction aims to outline in terms of a research programme how strategic aspects of that kind have be/ or can be made the subject of analysis from a rather pragmatic perspective. In line with the currently most pressing challenges, this introduction is used to demonstrate how notably ongoing ‘governance changes’ are to be/ or should be made drivers or starting points to give the whole process of modernising the management of state and administration the nowdesired more strategic shape.
As is known from international developments, the relevance of dealing with such a subject clearly goes back to the negative impact an inadequate strategic guidance has had on the design and implementation of large scale modernisation activities so far. There is evidence from a variety of different countries that demonstrate quite clearly how a deficient strategic guidance (or rather a total lack of guidance) has resulted in an inescapable waste or loss of possible efficiency as well as efficacy gains (for a brief account Jann/ Reichard 2003). No doubt, the given story of designing and implementing modernisation activities of a different scale in the Federal Republic of Germany is but one outstanding relevant example.
Therefore, coming from these experiences, the attempt is made in the following to reflect requisites and consequences as to how ongoing ‘public governance’ changes (mostly moves from the inherited definition of a ‘welfare-state’ to a rather ‘enabling authority’ understanding) have to/ or should be made drivers for deliberately adapting management processes in state and administration. To control the only most important means and effect relations in this respect, the question is raised as to how ‘public governance’ changes have to be systematically made the starting point (and have to be used as guiding models) for adapting or reconstituting leadership practices across all levels downwards – from the society-wide level down to the level of single service delivery units.
The strategically most relevant question is then as to whether current approaches are proving successful to get changes in the role and function of state and administration at large more or less systematically converted into the then dominant performance criteria at the workplace level of single delivery units. Coming from a rather pragmatic perspective (which also means from a rather design-oriented perspective), the main focus in substantive terms will be to elaborate the way in which purposively set-up designs can be used as levers to give the whole process the necessary strategic shape and, in turn, the desired extra efficiency- or efficacy-enhancing effects.
To explicate such a research programme, it becomes apparent that the common epistemological criteria/ distinction of the (analytical) philosophy of science are put into operation in the following discussion. Accordingly, the following outline is 1) firstly, going to elaborate the way in which the main subject of this programme – the currently dominant modernisation activities - is posited as a problem worth analysing from a scientific point of view.
